small packets as far as possible, and should convey large letters and
packets only when necessity was urgent: heavy packets would impede the
work of the Post Office, and would cause inconvenience in many ways,
especially as regards foot-messengers;[465] but, as it was not thought
likely that any very great number of book packets would be posted, the
objection was not upheld, and the cheaper rate was introduced. At first
various restrictions were imposed, and considerable public
dissatisfaction resulted, especially in regard to certain of the
regulations. These regulations were consequently relaxed in 1853 so as
to allow practically any printed matter to pass at the book rate. In
1855 the rate was reduced,[466] and in 1856 circulars were admitted at
the privileged rate. As a result of this the number of book packets
increased rapidly. In 1855 the total number was 3,000,000; in 1856 the
number increased to 6,000,000; and in 1862 reached 14,000,000. In 1866
the rates for heavier packets were further reduced. The rate for packets
over 8 ounces in weight became 1d. for each 4 ounces, instead of 2d. for
each 8 ounces.
In 1870, when the 1/2d. rate for newspapers and for postcards was
established,[467] an important change in the book post was made. As the
result of pressure from the public and a vote in the House of Commons in
favour of a reduction, carried against the wishes and recommendation of
the Government,[468] the rate on book packets was reduced to 1/2d. for
every 2 ounces.
Since 1870 the regulations governing admission to the book post have
been modified from time to time, chiefly in the direction of enabling
the formal documents of commerce to pass at the reduced rate. All
documents admitted to the privilege must conform to certain
requirements, and it is obvious that all such documents must be open to
inspection by the Post Office. It is therefore an indispensable
requirement that the documents be sent in open covers. Thus arises that
curious distinction between the "closed" post and the "open" post, a
lower rate of postage being given to packets containing articles or
documents of a certain description, on condition that the contents are
open to inspection by the postal authorities.
In 1897 the ordinary letter rate was made 1d. for the first 4 ounces,
and 1/2d. for each additional 2 ounces. The book post, therefore,
disappeared, except as regards packets not exceeding 2 ounces in weight;
and in 1904 its name was changed to the "Halfpenny Packet Post." It is
available for practically all the formal documents of commerce, and, in
addition, many other packets of miscellaneous character, and remains a
most important branch of Post Office traffic.[469] In 1913-14 the number
of halfpenny packets (excluding postcards) was no less than 1,172
millions, or about one-fifth of the total number of packets passing by
post in the United Kingdom.
When on the 1st November 1915 the postage on letters over 1 ounce in
weight was increased, the book post was re-established as it had existed
prior to 1897, except for unimportant modifications of the regulations.
It had been proposed to abolish altogether the 1/2d. rate of
postage,[470] but in view of strong representations from the printing
trade, and of the hostility of the general public, this proposal was
abandoned.
* * * * *
FRANCE
Particulars of the earlier rates of postage charged on printed matter in
France cannot now be ascertained, but they appear always to have been
lower than the rates for letters. Before the Revolution an octavo book
could be sent for any distance for 12 sous, and the postage on circulars
was less than a centime.[471]
By the decrees of 17-22 August 1791, a rate for daily newspapers of 8
deniers the sheet was established, and a rate of 12 deniers the sheet
for other newspapers and for periodical publications. During the
succeeding years the rates were modified a number of times. In 1796 the
following rates were established:--
4 centimes the sheet for newspapers;
5 centimes the sheet for unbound books, catalogues, and prospectuses.[472]
A distinction was always made between ordinary printed matter and
periodical publications.
In 1827 the size of the sheet which was the basis of the charge was
fixed at 25 square decimetres. The system of charge by weight was
applied to printed matter in 1856, with the following rates:--
1 centime for each 5 grammes up to 50 grammes
10 centimes from 50 to 100 grammes
1 centime for each 10 grammes beyond 100 grammes.
These rates were increased by some 50 per cent. in 1871. After the
establishment of the Universal Postal Union the rates in the internal
service were in some cases higher than those in the international
service, and it became advantageous to commercial men to post their
packets abroad. The French administration were then required under the
international convention to distribute them in France without receiving
any postage.[473] This anomalous situation was put an end to in 1878,
when the following rates were established:--
When sent under band--
1 centime for each 5 grammes up to 20 grammes
5 centimes from 20 grammes to 50 grammes;
5 " for each 50 grammes or fraction of 50 grammes
thereafter.
When sent in open envelopes--
5 centimes for each 50 grammes or fraction of 50 grammes.
The rates have since been reduced, and are now as follow:--
2 centimes for packets not exceeding 15 grammes in weight
3 " between 15 grammes and 50 grammes
5 " " 50 grammes and 100 grammes
5 " for each 100 grammes or fraction of 100 grammes thereafter.
The number of packets of printed matter has increased rapidly, as the
subjoined table shows:--
Number of Packets of Ordinary
Printed Matter
1877 195,148,116
1883 315,315,725
1889 406,252,198
The administration are given power to delay the despatch or transmission
of packets of ordinary printed matter should circumstances render that
course desirable.
In 1827 a special rate of 5 centimes for those delivered locally, and 10
centimes for others, was conceded to certain formal printed documents,
such as notifications of births, marriages, or deaths. In 1856, to these
were added prospectuses, catalogues, prices current, and _cartes de
visite_. These documents must be sent under band or in open envelopes.
The special rates on these classes of packets have been continued.
Under an order of the 26th November 1909 the rate for _cartes de visite_
was made 2 centimes when sent under band, but formulas of courtesy must
not appear on the cards. _Cartes de visite_ sent in open envelopes are
still charged 5 centimes.
* * * * *
GERMANY
In Prussia the order of 1712 did not provide a special rate for ordinary
printed matter sent by letter post. A reduced rate of two-thirds that
for ordinary merchandise was, however, provided for books and other
similar matter,[474] under the name of _Schriften- und Aktentaxe_, when
sent by parcel post.[475]
In 1821 special rates were prescribed for various classes of printed
matter sent under band (_Versendung unter Kreuzband_), viz. books,
music, catalogues, prospectuses, prices-current, printed circulars, as
follow--
For each ordinary sheet of printed matter or for eight sheets
small octavo size 8 pf.
For a half sheet 5 pf.
" quarter sheet 4 pf.
" sheet of music 10 pf.
" half sheet " 5 pf.[476]
The sheets were to be sent under band, and the name of the sender and
the number of sheets were to be written on the outside. The sending of
written matter in such packets was forbidden, under penalty of a fine of
ten times letter postage on a packet of the same size. In 1824 the rate
for matter sent under band (printed lottery winning lists, etc., were
now included) was made a quarter letter rate, and, like other rates, was
made chargeable according to direct distance of transmission. When, in
1850,[477] the rates for letters were revised and reduced, the rate for
matter sent under band was continued at a quarter letter rate, and
became (for 1 loth Zollgewicht = 1-1/8 loth Prussian)--
Up to 10 German miles 1/4 sgr.
10 to 20 " 1/2 sgr.
Over 20 " 3/4 sgr.
With the exception of the name and address of the addressee no writing
was permitted on these packets, but by the order of the 29th May 1848
the writing of the name and address of the sender and the date was
permitted.
With the increase in the number of packets sent under band at the
reduced rate, there grew up an increasing abuse of the privilege by the
enclosure in such packets of written communications. In order to check
this, it was provided in 1843 that when any large number of such packets
were posted by the same person, a few of the packets should be examined
in the presence of the sender. No penalty was at first imposed; but in
1850 it became necessary to take action, and the royal order of the 12th
June 1804, prescribing a penalty of 10 thalers in cases where a letter
was enclosed in a packet passing at a rate less than letter rate, was
made applicable to the case of packets sent under band; and the
regulation of the 15th December 1821, prescribing a surcharge of ten
times letter rate for a packet of like weight, was made applicable to
cases where a communication was written on the printed sheet sent at the
reduced rate.[478]
In 1850, when the German-Austrian Postal Union was founded, a uniform
rate of 4 silverpfennigs for each loth was introduced for packets sent
under band. Following the establishment of the Union, the Prussian
administration ([S] 50 of law of 5th June 1852) fixed a uniform rate for
its own service of 6 silverpfennigs for each loth. For local packets
sent under band (_Stadtpost-Kreuzbandsendungen_) a rate of 1 sgr. for
each packet was introduced, reduced to 4-1/2 pf. for each packet when as
many as 100 packets were posted at the same time, or 6 pf. each when
from 25 to 100 were posted at one time. The definition of printed matter
entitled to the privilege[479] was now enlarged.[480] The penalty for
misuse of the privilege was made a surcharge of four times the amount of
the postage, but not less than 5 thalers, which might be increased
fourfold on repetition of the offence. In 1854 the maximum charge for
packets sent under band was fixed at six times letter rate, in order to
get rid of the anomaly of a higher charge on heavy packets sent under
band than on letters.[481] The fact that packets under band could be
sent for 4 pf. throughout the territory of the Union, but that for
transmission within the Prussian territory the charge was 6 pf., and
that in consequence Prussian commercial men were posting their packets
abroad in large numbers, led to a reduction of the rate in 1856 to 4 pf.
for each loth.[482]
The large increase of traffic which resulted made desirable a
simplification of the definition of packets entitled to the privilege.
Only communications of general application could pass, and the officials
found themselves often in doubt as to the application of the existing
definition. Thus, notices of the despatch of goods, invitations, or
printed letters could not be sent at the privileged rate, while, e.g.,
notices of marriages could. So far as the Union was concerned, in 1860
the privilege was limited to documents reproduced by mechanical
means.[483] The maximum limit of weight was reduced from 16 loth to 1/2
pfund (15 loth). This definition was introduced in the Prussian inland
service in 1861. The rate of postage was also modified in that year. The
rate of 4 pf. for each loth was retained, but with the proviso that the
charge on packets sent under band should not exceed twice letter rate.
This effected a great reduction of charge for the heavier packets.
Whereas previously the rate for a packet under band weighing 10 loth,
sent more than 10 German miles, had been 18 sgr., it now became 6
sgr.[484] In 1865 a special rate of 4 pf. for printed matter sent in the
form of an open card was introduced in Prussia.[485] The simplification
of definition and reduction of rate resulted in a large increase of
traffic.
In 1867, when the North German Postal Services were unified, the penalty
for abuse of the privilege was reduced to a surcharge of four times
letter rate, but not less than a thaler; and the law of 1871, founding
the Imperial Post Office, abolished the fine because it had been found
that the offences were for the most part committed through ignorance of
the regulations. Slight changes were made in the regulations under which
printed matter was admitted to the privilege, but no change was made in
the rates of charge.
The law regarding the Imperial Post Office (28th October 1871) left the
fixing of rates for printed matter to the Imperial Chancellor. The
maximum limit of weight was raised from 1/2 pound (250 grammes) to 1
pound (500 grammes). The rates of postage were 1/3 sgr. for each 40
grammes up to 250 grammes, with a maximum of 2 sgr.; from 250 to 500
grammes, 3 sgr.[486] The large increase of traffic resulting from the
reductions in the rates for printed matter and for samples caused
practical difficulties, and in 1873[487] the acceptance of letters,
postcards, printed matter, and samples was to be only in the
_Briefkasten_.
In 1874[488] the limit of weight for printed matter was raised to 1
kilogramme, and the rate was made--
Not exceeding 50 grammes 3 pf.
50 to 250 grammes 10 pf.
250 to 500 " 20 pf.
Over 500 " 30 pf.
In 1879 (order of 8th March) the definition of printed matter was
further extended.[489]
The tariff of 1874 raised by about 50 per cent. the postage on packets
between 50 and 100 grammes. Against this protests were made, especially
since the rate for the transmission of such packets for the furthest
points of the Universal Postal Union was no greater than the rate for
transmission within Germany. In 1890 the rates were modified, packets
between 50 and 250 grammes being divided into two groups, 50 to 100
grammes, and 100 to 250 grammes. The rate for the first was made 5 pf.,
for the latter it remained 10 pf. The increase of the maximum limit of
weight has led to practical difficulties.[490]
This traffic has attained large proportions. In 1910 the number of
packets of printed matter passing in the inland service was nearly a
thousand millions.[491]
* * * * *
(II) SAMPLES
UNITED KINGDOM
In England, letters containing samples and patterns were from the first
establishment of the Post Office charged with double postage. In 1753,
arising out of the general dissatisfaction with the Post Office felt at
that time by the trading public, the legality of the double charge was
contested. Merchants, while admitting that any letter containing a
pattern or sample which should weigh as much as an ounce must pay at the
ounce rate, contended that, if weighing less than an ounce, the letter
should be charged according to the number of sheets of paper, and that
the pattern which was enclosed should be ignored.[492] The Act of the
9th of Anne prescribed the postage on "every single letter or piece of
paper" not of the weight of one ounce, and prescribed that "a double
letter" should pay double rate.[493] The contention of the merchants
was that the enclosure of a pattern or sample did not convert a single
letter into a double letter, and that to constitute a double letter
there must be a second sheet of paper--a contention which is sound
enough if postage be regarded as a tax on communications and not as a
mere charge for the conveyance of a packet. At Bristol, Manchester, and
Gloucester, legal proceedings were taken against local postmasters for
demanding and receiving more than the legal postage. In each case a
special verdict, in almost identical terms, was given, and the
Postmasters-General were advised by the Attorney-General that the
decision was likely to go against the Crown if they brought up one of
the verdicts for argument. In their difficulty they resorted to
Parliament, and obtained specific statutory authority for an additional
charge in respect of patterns and samples.[494]
This state of affairs continued until 1795, when samples were given a
definite statutory privilege. Under an Act of that year it was provided
that a packet of patterns or samples might pass as a single letter on
condition that it did not exceed 1 ounce in weight, that it was open at
the sides, and that it contained no writing other than the name and
address of the sender and the price.[495] This privilege was continued
by the Act of 1801.[496] In 1805 an additional penny was charged on all
such packets.[497] In 1812 a further addition to the postage was made,
viz. an addition of 2d. for every "letter, packet, or cover not
exceeding an ounce in weight" and containing a pattern or sample, if
"closed or not open at the sides," or an addition of 1d. if open at the
sides.[498] By the consolidating Act of 1837 it was provided that
packets or covers containing patterns or samples and not exceeding an
ounce in weight, if open at the sides and without any "letter or writing
in, upon, or within such packet or cover," other than the name and
address of the sender and the price, should be charged as single
letters, but "letters not open at the sides containing patterns or
samples and not exceeding 1 ounce in weight" were to be charged as
double letters.[499] In 1839 the Treasury were empowered to fix rates of
postage for all letters by weight,[500] and in 1840 rates of postage,
charged according to weight alone, "without reference to the number of
sheets or pieces of paper, or enclosures," were legalized.[501] This Act
contained no special provision in respect of packets containing samples
or patterns.
On the 1st October 1863, with the declared object of benefiting trade
and commerce by affording facilities for the cheap transmission of _bona
fide_ trade patterns and samples of merchandise throughout the country,
an "Inland Pattern and Sample Post" was established. Since the Post
Office, and the Post Office alone, had the means of conveying such
articles at a moderate rate of charge to and from all parts of the
country, including even the most remote, it was thought some special
concession ought to be made. The privilege was, however, restricted
within narrow limits, as it was feared that a large increase in the
number of moderately heavy packets would impede the work of the Post
Office. It would, moreover, seriously affect the amount of the payments
to railway companies for the conveyance of mails, a matter of grave
anxiety to the Post Office at that time.[502] The privilege was
therefore restricted to genuine samples, and no article of intrinsic
value might be sent at the reduced rate.
The original rates were:--
Under 4 ounces 3d.
" 8 " 6d.
" 16 " 1s. 0d.
" 24 " 1s. 6d.
The computations of the financial effects of the rates were made--as was
usual in such cases--by estimating the effect on the gross revenue,
taking into account the probable increase in the number of packets, and
estimating also what additional expense would be incurred in dealing
with the additional traffic.[503] The main financial principle seems to
have been that as the letter rate was enormously profitable, a reduced
rate for a comparatively small volume of traffic could be given without
involving actual loss, and without any serious result on the net
revenue.
In 1864 the rates were reduced by one-third. In 1865 the exclusion of
articles of intrinsic value was abandoned; but there was no relaxation
of the essential condition that the articles must be _bona fide_
samples. In 1866 there was a further slight modification of the rates.
The number of packets sent at the privileged rate increased from half a
million in 1864 to a million in 1865, and by 1868 the number had reached
three millions.
The facilities afforded by this post were taken advantage of to a large
extent for the forwarding of small packets of goods on sale or in
execution of an order. It was estimated that at least half the packets
were not genuine samples at all, but contained goods of this kind; and
the definite restriction of the post to its original purpose of carrying
trade samples and patterns was deemed necessary. This was provided for
in the Act of 1870, the rate of postage being at the same time reduced
to 1/2d. for every 2 ounces.
The enforcement of the restriction gave rise to considerable public
dissatisfaction. It was apparent that fairly general use had been made
of the sample post for the transmission of small parcels of all kinds of
goods. Many persons living in remote parts of the country were in the
habit of obtaining supplies of goods of various kinds by this means; and
it was alleged that by the facilities afforded by this post some
industries, such as lace-making, were actually created in certain
districts, or at any rate were greatly helped. The post was also much
used for the sending of small personal gifts.
Public agitation against the restriction became so strong that the
postal authorities, although apparently holding the view that a general
parcel post was indefensible in principle, became fearful that, unless
the public were given some concession on this point, an attack might be
made on the 1d. rate for ordinary letters. Such an attack, if
successful, would of course have been fatal to Post Office revenue. It
was proposed, therefore, to make definite provision for the transmission
by post at low rates of postage of small packets containing articles
other than samples. A rate for small parcels, whatever the contents,
would at the same time remove the difficult and unsatisfactory task of
deciding what was or was not a sample or pattern. These objects might be
secured by a general reduction of the rates for inland letters; and this
course was ultimately adopted, after some hesitation from fear of the
effect on the revenue. The rates on the heavier inland letters were
accordingly reduced by Treasury Warrant of 16th August 1871, and the
sample post at the same time abolished.[504]
In the early 'eighties there was a strong demand from the public for the
re-establishment of the sample post. The advantage to trade was
emphasized, and attention was called to the existence of a privileged
rate for samples on the Continent and in the international service. The
existence of a low sample rate in the international service led, indeed,
to a curious development. As samples which, if posted in this country,
would be charged 2d., could be posted on the Continent for foreign
transmission at a charge of 1d., several firms in England were in the
habit of sending large numbers of sample packets in bulk to Belgium,
where they were posted at the 1d. rate addressed to places in England.
The result of this man[oe]uvre was that, instead of receiving the inland
postage of 2d. for these packets, the British Post Office performed
practically the same service in respect of them as if they had been
posted in England, but received nothing, since under the Postal
Convention the whole of the postage on foreign letters is retained by
the country of origin. It was estimated that there was in this way a
loss to revenue of [L]1,000 a year.
It was in great part the existence of this anomaly which led to the
re-establishment of the sample post in 1887. No exact estimate was made
of the cost of dealing with sample packets, but the authorities stated
that the rates proposed, viz. under 4 ounces 1d., over 4 ounces and
under 6 ounces 1-1/2d., and over 6 ounces and under 8 ounces 2d. (8
ounces to be the maximum weight), would be remunerative, and that any
immediate loss to revenue in consequence of the reduction in rates would
therefore be likely soon to be made up. This statement must, however,
have been based on general considerations and estimates. In the
following year the Secretary to the Post Office (Sir Arthur Blackwood)
told a Select Committee of the House of Commons that the Post Office had
not any return of the cost per million letters, or any return of that
kind by quantity, and that the Post Office could not give the actual
cost per million letters.[505]
The post, which was re-established in the interests of trade and could
only be used by traders, was continued until 1897, when the Jubilee
reductions brought down the postage on ordinary letters to the level of
the sample rate.
The sample post was never more than a very minor part of the Post Office
business. In 1865, when the total number of letters passing by post was
some 700 millions, the number of samples was one million. In 1870 the
number of samples was four millions. In 1896, the last year of its
existence as a special rate, the number of samples was nine millions. In
that year the number of letters, etc., was some 3,000 millions.
As a result of the increase of letter postage on the heavier letters,
as a war measure, it has been deemed necessary to re-establish the
inland sample post. On the 1st November 1915 the post was accordingly
re-established substantially as it existed prior to 1897. The rates of
postage are the same, and the regulations practically unaltered.
* * * * *
FRANCE